Consultation Workbook on the Addition of Three Populations of Belugas to the SARA List (2004)

1. Table of Contents
2. Part 1 : Adding a species or population to the SARA List
3. Part 2 : Information about each beluga population
4. Part 3: Let us know what you think
5. Appendix

Please send your comments on this consultation to Fisheries & Oceans Canada, Central and Arctic Region at: fwisar@dfo-mpo.gc.ca

Or by regular mail comments should be sent to the following address:

Central and Arctic Region

SARA Coordinator

Freshwater Institute

Fisheries & Oceans Canada

501 University Avenue

Winnipeg, Manitoba

R3T 2N6

To request for additional copies of the workbook, please call 1-866-715-7272.

For more information on the Species at Risk Act, please visit the Public Registry at

http://www.sararegistry.gc.ca

For more information on species at risk, please visit the Fisheries & Oceans Canada aquatic Species at Risk website:

http://www.aquaticspeciesatrisk.gc.ca or Environment Canada’s Species at Risk website: www.speciesatrisk.gc.ca

Information on species at risk is also available on the website of the Committee on the Status of Endangered Wildlife in Canada (COSEWIC): www.cosewic.gc.ca

Illustration credit: Beluga – Gerald Kuehl, 2000

Introduction

To protect wildlife species at risk, on June 5, 2003, the Government of Canada proclaimed the Species at Risk Act (SARA). SARA provides a framework for actions across Canada to promote the survival of wildlife species and the protection of our natural heritage. It sets out how to decide which species are a priority for action and what to do to protect a species. It identifies ways governments, organizations and individuals can work together, and it establishes penalties for failures to obey the law.

Two federal Ministers are responsible for the administration of SARA. The Minister of Fisheries and Oceans is the competent Minister for aquatic species. The Minister of the Environment is the competent Minister for all other species at risk, including those found in national parks, national historic sites and other protected heritage areas. The Minister of the Environment is also responsible for the administration of the Act.

The Act protects the plants and animals included on a list within SARA (Schedule 1). Schedule 1 is also referred to as the List of Wildlife Species at Risk and will be referred to as the SARA List in the rest of this workbook. Species are put on the SARA List as a result of the work of the scientists and conservationists who are members of the Committee on the Status of Endangered Wildlife in Canada (COSEWIC). They conduct scientific assessments of the status of species. The Government then decides which species are added to the SARA List as such action could have economic or social implications.

233 species were included on the SARA List of the Act when Parliament passed SARA in December 2002. COSEWIC had already assessed these species as “at risk” using new updated assessment criteria and current information. When the Act came into force in June 2003, these species were on the initial SARA List.

Since then, COSEWIC has identified more species that are at risk. The Minister of Environment is now considering recommending those species for addition to the SARA List. As part of that process, the Minister of Fisheries and Oceans is currently carrying out public consultations on three beluga populations that live in the eastern Arctic. The purpose of this consultation workbook is to invite Canadians to let us know whether these populations should be added to the SARA List.

Background

The Species at Risk Act

The Species at Risk Act strengthens the Government of Canada’s ability to protect Canadian plants and animals in danger of becoming extinct. This protection applies only to species which are included on the SARA List. Adding a species to the SARA List requires a two-step process. The first step is identifying a species at risk and the second step is the listing of that species.

Identifying a species at risk

COSEWIC is an independent group whose mandate is to assess the status of plants and animals in Canada and identify those at risk. The committee is made up of biologists, ecologists, geneticists and individuals with aboriginal traditional knowledge who are experts on wildlife species at risk. Members come from many areas, including government, universities, Aboriginal organizations and non-government agencies.

COSEWIC assesses the biological status of a species using the best available information on the biological status of the species. It reviews research, considers community and Aboriginal traditional knowledge, and applies strict assessment criteria. COSEWIC meets at least once a year to assess the biological status of species. Species that COSEWIC considers to be “at risk” are designated to one of the following categories:

Extinct –A wildlife species that no longer exists.

Extirpated – A wildlife species that is no longer found in the wild in Canada but may be found elsewhere.

Endangered – A wildlife species facing imminent extirpation or extinction.

Threatened – A wildlife species likely to become Endangered if nothing is done to reverse the factors threatening it.

Special Concern - A wildlife species that may become a Threatened or Endangered species because of a combination of biological characteristics and identified threats.

Listing a species at risk

The process of listing a species begins when COSEWIC submits its assessment to the Minister of the Environment. Upon receiving the assessment the Minister has 90 days to issue a Response Statement on how he or she intends to respond to the assessment and, to the extent possible, provide time lines for action. The Minister then forwards the species assessment to Governor in Council (GIC)[1], along with his or her recommendation on whether GIC should…

a) accept the COSEWIC assessment and add the species to the SARA List;

b) not add the species to the SARA List; or

c) refer the matter back to COSEWIC for further information or consideration.

GIC has nine months after receiving the COSEWIC assessment to decide whether the species should be added to the SARA List. If a decision has not been made within that time period, the Minister of the Environment will add the species to the SARA List.

What does it mean when a species or population is added to the SARA List?

The amount of protection the SARA provides depends on the assessed threat level. It is an offence to kill, harm, harass, possess, collect, buy, sell or trade an individual of an Extirpated, Endangered and Threatened species. It is also illegal under the Act to damage or destroy the residences of Endangered and Threatened species or for Extirpated species if a recovery strategy has recommended the introduction of the species into the wild in Canada. These prohibitions do not apply to species of Special Concern. SARA protects all species covered under the Migratory Birds Convention Act, 1994, all listed aquatic species and all listed species on federal lands. The provinces and territories are responsible for making sure that all listed Extirpated, Endangered and Threatened species that are located outside federal lands receive adequate protection. However, if that protection is not given, the federal government can intervene, using “safety-net” provisions of SARA, but only after consulting with the province or territory concerned and carrying out public consultations.

The Ministers of the Environment and of Fisheries and Oceans can, under special circumstances, make exceptions to SARA. For example, they can issue a permit that would allow a qualified scientist to carry out a research project that benefits a listed species or is required to enhance its chances of survival in the wild. Exceptions can only be made if all reasonable alternatives have been considered and if the Minister can be assured that the survival or recovery of the species will not be jeopardized.

Recovery strategies and action plans for Extirpated, Endangered and Threatened species

If a wildlife species is added to the SARA List as an Extirpated, Endangered or Threatened species, the competent Minister must prepare a strategy for its recovery. Recovery Strategies must be completed and made available on the SARA Public Registry, for public review, within one year for newly listed Endangered species and within two years for Threatened and Extirpated species. The Recovery Strategy addresses known threats to the species, including loss of habitat and gaps in knowledge, and identifies critical habitat to the extent possible. It also sets a recovery goal. The Recovery Strategy is followed up with one or more Action Plans which identify ways to reduce threats to the species and protect its critical habitat, as well as other measures to be taken to implement the Recovery Strategy.

The Recovery Strategy and Actions Plans are prepared in cooperation and consultation with Wildlife Management Boards, Aboriginal communities that are directly affected by the Recovery Strategy, and jurisdictions such as provincial or territorial governments who are responsible for the management of the species. Landowners and others who are directly affected will also be consulted.

Management plans for Species of Special Concern

If a wildlife species is listed as a species of Special Concern, the responsible Minister must prepare a Management Plan. It must be posted on the SARA Public Registry within three years of the species being added to the SARA List. The Management Plan identifies conservation measures aimed at protecting the species and its habitat. A

Management Plan is prepared in cooperation with groups directly affected by the plans, including Wildlife Management Boards and Aboriginal organizations. To the extent possible, landowners, land users and others who may be directly affected by the plans will also be consulted.

Public Consultation

Why are we having these consultations?

Before the Minister of the Environment makes a recommendation to GIC about whether to add a species to the SARA List, he or she will consider the balance between the social and economic benefits and costs associated with adding the species to the SARA List and the potential consequences for the species and Canadians of not adding it. The Government will meet with wildlife management boards, Aboriginal groups or organizations and other members of the public who have either a direct interest in the species under consideration or wish to comment on the issue. This includes – but is not limited to – landowners, land users, non-government environmental organizations, industries and industry groups. This consultation workbook is another way in which you can let us know what you think.

Comments received from Canadians will be carefully reviewed, evaluated and documented in a Regulatory Impact Analysis Statement (RIAS). The RIAS is an important part of the federal government’s regulatory process. In addition, a draft Order (an instrument that serves notice of a decision taken by the executive arm of government) proposing to add the species to the SARA List is prepared. This draft Order along with the RIAS will be published in the Canada Gazette Part I for a period of time to allow Canadians another opportunity to comment. The Minister of the Environment will take into consideration all received comments before recommending to the GIC whether to add the species to the SARA List or not. The GIC’s decision will be published in the Canada Gazette Part II and made available on the SARA Public Registry.

Invitation to submit comments

Consultations concerning adding species to the SARA List are part of the Government’s commitment to encourage public participation in programs designed to protect Canadian plants and animals and their habitat. Three populations of belugas – the Cumberland Sound, Eastern High Arctic – Baffin Bay, and Western Hudson Bay populations – have been recently assessed or reassessed by COSEWIC as species at risk and are being considered for addition to the SARA List. We welcome your comments about whether these beluga populations should be added to the SARA List.

A questionnaire has been provided near the end of this workbook. Please fill it out and mail your answers and comments to

Central & Arctic Region SARA Coordinator
Freshwater Institute
Fisheries & Oceans Canada
501 University Avenue
Winnipeg MB R3T 2N6

or

fwisar@dfo-mpo.gc.ca

The deadline for submission of comments is March 31, 2005.

SARA Public Registry

The SARA Public Registry, available on the Internet, is a complete source of information on topics covered by the Act and offers access to public records concerning the administration of SARA. It is a key instrument that allows the government to respect its commitment to support public contribution in the environmental decision-making process. The Public Registry can be found at the following address:

http://www.sararegistry.gc.ca

[1] Governor in Council is the Governor General of Canada acting on the advice of the Queen’s Privy Council of Canada (i.e. Cabinet).

Status: Threatened

Last Examination by COSEWIC: May 2004

Biology

The beluga, Delphinapterus leucas, is a medium-sized toothed whale which turns completely white when it reaches sexual maturity. On average, adult males of this population measure 369 cm and weigh between about 450 and 1000 kg and adult females measure 338 cm and weigh between about 250 to 700 kg.

Females reach sexual maturity at about 5 years; males at about 8 years of age. Breeding appears to peak in May and calves are born in late July or early August after a gestation period of about 14 months. Calves nurse for up to two years. On average, the calving interval is about one calf born every three years although local hunters reported that females may give birth annually.

Life span is estimated to range between 15 and 30 years. Local hunters report belugas feed mainly on Arctic cod at the floe-edge in spring and on a variety of fish and invertebrates in summer. Satellite-tagging studies indicate that during the winter, belugas dive to depths of 300 m or more, presumably to feed.

Where is this population of whales found?

The Cumberland Sound beluga population appears to be restricted to the waters of Cumberland Sound off southeastern Baffin Island in Nunavut. Most whales spend the summer near the head of Cumberland Sound, in or near Clearwater Fiord. During the rest of the year, they move to the centre or near the mouth of the Sound (see Appendix, Fig. 1, p. 22).

How many whales are there?

Prior to 1923, the Cumberland Sound population was estimated at over 5,000 animals but their numbers dropped substantially between the 1920s and 1960s because of large commercial catches. Although commercial whaling ceased in 1960, subsistence hunts are still carried out. Aerial surveys, complemented with dive data from satellite-tagged whales to correct for diving animals missed during the surveys, were conducted in the northern end of Cumberland Sound between 1979 and 1999. The most recent survey produced a population estimate of 1,940 belugas. Both scientific data and Inuit knowledge suggest the population has been stable or increasing over the past decade.

Threats to the population

The whales are threatened by polar bears, killer whales and ice entrapments. A variety of human activities (e.g., noise and disturbance resulting from vessel traffic, climate change, contaminants) may also put them at risk.

Are they hunted?

Yes. There is a carefully-managed subsistence hunt.

COSEWIC Reason for Designation:

Numbers of belugas using Cumberland Sound have declined by about 1500 individuals between the 1920s and the present.The population decline is believed to have been caused by hunting by the Hudson Bay Company into the 1940s and by the Inuit until 1979. Hunting has been regulated since the 1980s. Current quotas (41 in 2003) appear to be sustainable. Concerns have been raised about increased small vessel traffic and the associated noise of outboard motors, as well as fishery removals of Greenland halibut, a food of belugas.

What will happen if this population is added to the SARA List?

• Designating Cumberland Sound belugas, as “Threatened”, and adding them to the SARA List would initiate development of a recovery strategy¹, a document that would establish a recovery goal, identify threats to belugas and critical habitat to them, and describe what should be done to help the population increase in numbers.
• The Strategy would support continued recovery of this beluga population. It would recommend a number of ways to achieve that goal, including using scientific and Inuit approaches, to assess and protect the population and habitat while still maintaining a sustainable Inuit subsistence hunt.
• In the future, specific recovery actions would be developed in an action plan once a Recovery Action Group had been established.
• SARA contains automatic prohibitions that make it an offence to kill or harm an individual that has been legally listed as Threatened, or damage or destroy its residence. However the Act allows for some exceptions to the automatic prohibitions under certain circumstances.

¹ In anticipation of possible legal listing, a Recovery Team was formed in September 2002 consisting of representatives from the Pangnirtung Hunters and Trappers Organization, Qikiqtaaluk Wildlife Board, Nunavut Wildlife Management Board, Nunavut Tunngavik Incorporated and Fisheries and Oceans Canada. The Recovery Team finished writing the Strategy in March 2004. It is currently being reviewed.

Status: Special Concern

Last Examination by COSEWIC: May 2004

Biology

The beluga, Delphinapterus leucas, is a medium-sized toothed whale which turns completely white when it reaches sexual maturity. On average, adult males of this population measure 345 cm and weigh between about 450 and 1000 kg and adult females measure 321cm and weigh between about 250 to 700 kg.

Females reach sexual maturity at about 5 years; males at about 8 years of age. Mating probably occurs during late winter to early spring, peaking before mid-April. Calves are born between June and August, with the calving season probably peaking from mid-June to early July.On average, the calving interval is estimated to be one calf born every three years.

Life span is estimated to range between 15 and 30 years. Belugas have a varied diet composed of small fish and crustaceans. In the High Arctic, their main food sources are arctic cod and Greenland halibut (turbot). Satellite-tagging studies indicate belugas dive to depths of 300 m or more, presumably to feed.

Where is this population of whales found?

This Eastern High Arctic-Baffin Bay population lives in the eastern Canadian high Arctic regions of Lancaster Sound, Barrow Strait, Peel Sound and Baffin Bay during the summer, when the water is open. In the fall, these whales migrate to wintering areas either in the North Water polynya, in the northern end of Baffin Bay, or along the west coast of Greenland to as far south as 66° N (see Appendix, Fig. 2, p. 23).

How many whales are there?

An aerial survey conducted in the Canadian high Arctic in August 1996 produced a population estimate of 21,213 belugas, including diving animals.

Threats to the population

The whales are threatened by polar bears, killer whales and ice entrapments. A variety of human activities (e.g., noise and disturbance resulting from vessel traffic, climate change, contaminants) may also put them at risk. For example, heavy hunting occurs in the waters off West Greenland.

Are they hunted?

This population of belugas is hunted by communities in northern Nunavut and West Greenland. The Canadian hunt is relatively small compared with the numbers taken by west Greenland hunters.

COSEWIC Reason for Designation:

The population overwinters in Baffin Bay and west Greenland and may consist of two distinct populations. It is heavily hunted in west Greenland. However, most of the population winters in Baffin Bay and the high Arctic where it is not hunted. Hunting pressure in Canadian waters is low in summer.

What will happen if this population is added to the SARA List?

• Adding Eastern high Arctic belugas as a Species of Special Concern to the SARA List would result in the development of a management plan, a document to promote conservation of a vulnerable species or population by establishing specific management or conservation measures.
• The Management Plan would be developed jointly by co-management partners and other agencies and individuals with an interest in this population. In areas where belugas are harvested for subsistence, the Plan will assist Hunters and Trappers Organizations to manage this population of belugas. Where belugas are not hunted, it will guide non-consumptive activities such as tourism.
• The Management Plan could recommend protective measures for the beluga population, including:
• Supporting and implementing recommendations developed by the Canada-Greenland Joint Commission on Conservation and Management of Narwhal and Beluga (JCNB) for this shared population of belugas.
• Assessing risks to the beluga population that would result from different hunting levels in different locations in high Arctic waters.
• Designating beluga management zones or habitat protection measures if needed.
• Developing guidelines to reduce disturbance to belugas from non-consumptive activities such as tourism and shipping, if needed

Status: Special Concern

Last Examination by COSEWIC: May 2004

Biology

The beluga, Delphinapterus leucas, is a medium-sized toothed whale which turns completely white when it reaches sexual maturity. On average, adult males of this population measure 333 cm and weigh between about 450 and 1000 kg and adult females measure 284 cm and weigh between about 250 to 700 kg.

Females reach sexual maturity at about 5 years; males at about 8 years of age. Mating probably occurs during late winter to early spring, peaking before mid-April. Calves are born between June and August, peaking between late June and late July. On average, the calving interval is about one calf born every three years.

Life span is estimated to range between 15 and 30 years. Belugas have a varied diet composed of small fish and crustaceans. In western Hudson Bay their main food sources are sand lance, capelin and shrimp.

Where is this population of whales found?

In summer, they gather in the estuaries of the Churchill, Nelson and Seal Rivers. From mid-June to late July, belugas migrate from their wintering area in Hudson Strait, along eastern Hudson Bay. They pass east of Mansel Island and west of the Belcher Islands, to arrive at their summer areas. In summer, some whales begin to move as far north as Repulse Bay. During the fall migration, some retrace their spring migration route along eastern Hudson Bay; others move northward and then head east, travelling between Southampton Island and Coats Island, to reach Hudson Strait (see Appendix, Fig. 3. p. 24).

How many whales are there?

Based on surveys conducted between 1978 and 1987, the Western Hudson Bay beluga population is estimated to be in excess of 23,000 animals. Results from a survey conducted in summer 2004 will be available in the near future.

Threats to the population

The whales are threatened by polar bears, killer whales and ice entrapments. A variety of human activities (e.g., noise and disturbance resulting from vessel traffic, climate change, contaminants, and hydroelectric dams) may also threaten the population.

Are they hunted?

These whales are hunted for subsistence by communities along the western shore of Hudson Bay, around the Belcher Islands and in the waters off Nunavik.

COSEWIC Reason for Designation:

The population appears to be relatively abundant, although it has not been surveyed for 15 years and may consist of more than one population. The population is subject to substantial removals by hunting in parts of its range, and is potentially threatened by shipping and hydroelectric dams.

What will happen if this population is added to the SARA List?

• Addition of Western Hudson Bay belugas, as a Species of Special Concern, to the SARA List would require the development of a management plan, a document to promote the conservation of a vulnerable wildlife species or population by establishing specific management or conservation measures.
• The Management Plan would be developed jointly by co-management partners and other agencies and individuals with an interest in this population. In areas where belugas are harvested for subsistence, the Plan will assist Hunters and Trappers Organizations to manage this population of belugas. Where belugas are not hunted, it will guide non-consumptive activities such as tourism or hydroelectric development.
• The Management Plan could recommend protective measures for the beluga population, including:
• Developing ways, such as collecting hunt data, to ensure well-managed hunts.
• Developing procedures to respond to requests by Nunavik hunters to harvest belugas from the Western Hudson Bay population (e.g., by identifying which agencies would process and/or make decisions on such requests).
• Designating beluga management zones or habitat protection measures if needed.
• Developing guidelines to reduce disturbance to belugas from non-consumptive activities such as tourism, shipping, hydroelectric development, if needed.

By answering the following questions you will help the federal government understand the benefits and impacts of adding Cumberland Sound belugas, Eastern High Arctic-Baffin Bay belugas or Western Hudson Bay belugas to the SARA List.

Please fill out the questionnaire that follows and send us your answers either by mail

Central and Arctic Region
SARA Coordinator
Freshwater Institute
Fisheries & Oceans Canada
501 University Avenue
Winnipeg, Manitoba
R3T 2N6

by fax (204) 983-5192

or by e-mail fwisar@dfo-mpo.gc.ca

The deadline for receiving comments is March 31, 2005.

For questions or comments concerning the Species at Risk Act or concerning this consultation process, please write to us at the address given above or call us at (204) 984-0599.

THANK YOU

Your name (optional):

Population of interest: Cumberland Sound belugas

What is your interest in Cumberland Sound belugas?
(for example: fishing/hunting as a food source, tourism, guiding, research, etc.)

1a) Based on what you have learned about theSpecies at Risk Act, do you think addingCumberland Sound belugas to the SARA List would affect your activities? How?

b) If adding Cumberland Sound belugas to the SARA List will affect your activities do you see these effects as a cost or benefit to you, and in what way?

c) If you think adding Cumberland Sound belugas to the SARA List will have a negative effect on you or your activities, can you suggest ways to reduce the impact?

2. Do you think you could contribute to the conservation of Cumberland Sound belugasas an individual or organization? Can you give a few examples of activities?

3. To be effective, the recovery or conservation of a species at risk must be a cooperative process that includes organizations and individuals with knowledge of the population and the threats it faces. Please tell us which organizations or individuals you feel should be involved in the recovery or conservation of Cumberland Sound belugas?

• Are you in favour of the Government of Canada adding Cumberland Sound belugasto the SARA list?

£ Yes £ No

Why?

5. Please add any other comments or concerns (include additional sheets, if necessary).

PLEASE SEND COMMENTS BY Thursday, March 31, 2005

Your name (optional):

Eastern High Arctic-Baffin Bay beluga s

What is your interest in Eastern High Arctic-Baffin Bay belugas?
(for example: fishing/hunting as a food source, tourism, guiding, research, etc.)

1a) Based on what you have learned about theSpecies at Risk Act, do you think addingEastern High Arctic-Baffin Baybelugas to the SARA List would affect your activities? How?

b) If adding EasternHigh Arctic-Baffin Bay belugasto the SARA List will affect your activities do you see these effects as a cost or benefit to you, and in what way?

c) If you think addingEastern High Arctic-Baffin Baybelugas to the SARA List will have a negative effect on you or your activities, can you suggest ways to reduce the impact?

2. Do you think you could contribute to the conservation of Eastern High Arctic-Baffin Bay belugas as an individual or organization? Can you give a few examples of activities?

3. To be effective, the recovery or conservation of a species at risk must be a cooperative process that includes organizations and individuals with knowledge of the population and the threats it faces. Please tell us which organizations or individuals you feel should be involved in the recovery or conservation of Eastern High Arctic-Baffin Baybelugas?

• Are you in favour of the Government of Canada adding Eastern High Arctic-Baffin Bay belugas to the SARA list?

£ Yes £ No

Why?

5. Please add any other comments or concerns (include additional sheets, if necessary).

PLEASE SEND COMMENTS BY Thursday, March 31, 2005

Your name (optional):

Population of interest: Western Hudson Bay beluga s

What is your interest in Western Hudson Bay belugas?
(for example: fishing/hunting as a food source, tourism, guiding, research, etc.)

1a) Based on what you have learned about theSpecies at Risk Act, do you think adding Western Hudson Bay belugas to the SARA List would affect your activities? How?

b) If adding Western Hudson Bay belugas to the SARA List will affect your activities do you see these effects as a cost or benefit to you, and in what way?

c) If you think adding Western Hudson Bay belugas to the SARA List will have a negative effect on you or your activities, can you suggest ways to reduce the impact?

2. Do you think you could contribute to the conservation of Western Hudson Bay belugas as an individual or organization? Can you give a few examples of activities?

3. To be effective, the recovery or conservation of a species at risk must be a cooperative process that includes organizations and individuals with knowledge of the population and the threats it faces. Please tell us which organizations or individuals you feel should be involved in the recovery or conservation of Western Hudson Baybelugas?

• Are you in favour of the Government of Canada adding Western Hudson Bay belugas to the SARA list?

£ Yes £ No

Why?

5. Please add any other comments or concerns (include additional sheets, if necessary).

PLEASE SEND COMMENTS BY Thursday, March 31, 2005

Figure 1. The grey and black shaded areas show where the population of Cumberland Sound belugas is known to occur (copied from COSEWIC Status Report 2004).

Figure 2. The grey and black shaded areas show where the population of EasternHigh Arctic-Baffin Baybelugas is known to occur (copied from COSEWIC Status Report 2004).

Figure 3. The grey and black shaded areas show where the population of Western Hudson Baybelugas is known to occur (copied from COSEWIC Status Report 2004).